Romania – Bulgaria Cross-Border Cooperation Programme 2007-2013 October 2007

E u r o p e a n R e g i o n a l D e v e l o p m e n t F u n d 2 0 0 7 – 2 0 1 3

Objective European Territorial Cooperation

ROMANIA – BULGARIA

CROSS-BORDER COOPERATIONPROGRAMME

- 2007-2013 -

REVISED OFFICIAL PROPOSAL

October 2007

Table of Contents

GLOSSARY OF ACRONYMS

Chapter 1. Introduction

1.1.Cross-Border Cooperation in a changing context

1.2.Official Title

1.3. Reference documents

1.4. Programme summary and description of programming process

1.4.1. General information

1.4.2. Description of the programming process

Chapter 2. Summary description of the Romanian-Bulgarian cross-border area

2.1. The Programme area

2.2. Geographical features

2.3. Population

2.4. Economy

2.5. Infrastructure

2.5.1. Transport infrastructure

2.5.2. Telecommunications

2.6. Environment

2.7. Labour market

2.8. Tourism

2.9. Education, Research and Development

2.10. Experience with previous cross-border activities until 2006. Lessons learned

2.11. Concluding remarks for the co-operation area as a whole. SWOT Analysis

Chapter 3. Joint cross-border development strategy and coherence with other programmes

3.1. Strategy

3.1.1. Objectives

3.1.2. Programme level indicators

3.1.3. Identification of the priority axes

3.1.4. Programme coherence with EU objectives and other EU programmes and policies

3.1.5. Coherence with horizontal priorities

3.1.6. Main findings of the ex-ante evaluation

3.1.7. Compliance with the SEA evaluation

Chapter 4. Programme priority axes

4.1. Priority Axis 1: Accessibility - Improved mobility and access to transport, information and communication infrastructure in the cross-border area

4.2. Priority axis 2: Environment - Sustainable use and protection of natural resources and environment and promotion of efficient risk management in the cross-border area

4.3. Priority axis 3: Economic and Social Development - Economic development and social cohesion by joint identification and enhancement of the area’s comparative advantages

4.4. Priority axis 4: Technical Assistance

Chapter 5. Financial provisions

Chapter 6. Implementation

6.1. Programme management bodies

6.1.1. Designation of management bodies

6.1.2. Managing Authority

6.1.3. Bulgarian National Authority

6.1.4. Joint Monitoring Committee

6.1.5. Certifying Authority

6.1.6. Paying Unit

6.1.7. Audit Authority

6.1.8. Joint Technical Secretariat

6.2. Project generation, application and selection

6.2.1. Lead Partner principle

6.2.2. Project generation

6.2.3. Project Application and Selection system

6.2.4. Contracting procedures

6.2.5. Technical Assistance Management

6.3. Financial management and control

6.3.1. ERDF financial flow and certification

6.3.2. National co-financing

6.3.3. Technical Assistance

6.4. Monitoring and Evaluation

6.4.1. Monitoring

6.4.2. Evaluation

6.5. Information and Publicity

6.5.1. Responsibilities

6.5.2. Purpose

6.5.3. General Objectives

6.5.4. Specific objectives

6.5.5. Target groups

6.5.6. Monitoring and evaluation of the communication plan

ANNEXES

GLOSSARY OF ACRONYMS

AA / Audit Authority
BG / Bulgaria
CA / Certifying Authority
CBC / Cross-Border Cooperation
CBC ROC / Cross-border Cooperation Regional Office Calarasi
CBA / Cost Benefit Analysis
CIS / The Commonwealth of Independent States
EAFRD / European Agricultural Fund for Rural Development
EC / European Commission
EFF / European Fisheries Fund
EDIS / Extended Decentralised Implementation System
ERDF / European Regional Development Fund
ESF / European Social Fund
EU / European Union
FID / Framework Implementation Document
GD / Government Decision
GDP / Gross Domestic Product
IA / Implementing Agency
ICT / Information and Communication Technology
IRR / Internal Rate of Return
IT / Information Technology
ISPA / Instrument for Structural Policies for Pre-accession
JCC / Joint Cooperation Committee
JMC / Joint Monitoring Committee
JPD / Joint Programming Document
JSC / Joint Steering Committee
JSPF / Joint Small Projects Fund
JTF / Joint Task Force for programming
JWG / Joint Working Group for programming
JTS / Joint Technical Secretariat
MA / Managing Authority
MDPWH / Ministry of Development, Public Works and Housing
MF / Ministry of Finance (Bulgaria)
MEF / Ministry of Economy and Finance (Romania)
MIS / Management Information System
MoU / Memorandum of Understanding
MS / Member States
ACSI / Authority for Coordination of Structural Instruments
NAPPRM / National Authority for Public Procurement Regulation and Monitoring
NDP / National Development Plan
NGO / Non Governmental Organization
NIS / National Institute for Statistics
NMS / New Member States
NSRF / National Strategic Reference Framework
NPRD / National Programme for Rural Development
NUTS / Nomenclature of Territorial Units for Statistics
OP / Operational Programme
OPF / Operational Programme for Fisheries
OPTA / Operational Programme Technical Assistance
PC / Personal Computer
Phare CBC / Phare (PolandHungaryAid for Reconstruction of the Economy) Programme for Cross-Border Cooperation
Programme / Romania – Bulgaria Cross-Border Cooperation Programme 2007-2013
RDA / Regional Development Agency
R&D / Research and Development
RTD / Research and Technological Development
RO / Romania
ROC / CBC Regional Office Calarasi
ROP / Regional Operational Programme
ESC / Evaluation Steering Committee
SEA / Strategic Environmental Assessment
SMEs / Small and Medium sized Enterprises
SMIS / Single Management Information System (national)
SOP / Sectoral Operational Programme
SOPACD / Sectoral Operational Programme “Administrative Capacity Development”
SOPE / Sectoral Operational Programme “Environment”
SOPHRD / Sectoral Operational Programme “Human Resources Development”
SOPIEC / Sectoral Operational Programme „Increase of Economic Competitiveness”
SOPT / Sectoral Operational Programme “Transport”
SWOT / Strengths, Weakness, Opportunities, Threats
TA / Technical Assistance
VAT / Value Added Tax
WFD / Water Framework Directive

Chapter 1. Introduction

The present Operational Programme lays down the framework for European Territorial Cross-Border Cooperation between the Romanian and Bulgarian border regions under the Cohesion policy 2007-2013. The programme will enable cross-border cooperation by bringing together the different actors – people, economic actors and communities – closer to each other, in order to better exploit the opportunities offered by the joint development of the cross-border area.

The Romania-Bulgaria Cross-Border Cooperation Programme 2007-2013 will be financed by public (State and local budgets) and private sources and will be co-financed by the European Regional Development Fund (ERDF). The date from which expenditure shall be considered eligible according to the Regulations is January 1st, 2007.

1.1.Cross-Border Cooperation in a changing context

The European Union’s Cohesion Policy 2007-2013 intends to strengthen the Community’s economic and social cohesion of the enlarged EU in order to promote the harmonious, balanced and sustainable development of the Community, while reducing the economic and social territorial disparities which have arisen in countries and regions lagging behind, and speeding-up their economic and social restructuring.

The new Cohesion policy 2007-2013 recognises the importance of cross-border, transnational and interregional cooperation as one of its key objectives in the enlarged Europe. The European Territorial Cooperation Objective financed by ERDF aims at strengthening cross-border cooperation through joint local and regional initiatives and strengthening transnational and inter-regional cooperation. It will support actions conducive to integrating territorial development linked to Community priorities, strengthening interregional cooperation and promoting the exchange of experience at the appropriate territorial level. The ultimate objective of cross-border cooperation in Europe is to integrate areas divided by national borders that face common problems requiring common solutions.

The European Territorial Co-operation Objective provides assistance in the border regions mainly for the development of cross-border economic, social, environmental activities through joint strategies for sustainable territorial development.

European territorial cross-border cooperation is designed to make a significant contribution to the renewed Lisbon strategy. The assistance will be concentrated on the main priorities in support of sustainable growth and job creation.

The rules for programmes to be implemented under the European Territorial Cooperation Objective are stated in new regulations, which have direct effect and applicability in Romania and Bulgaria after their accession to EU, i.e. January 2007.

1.2.Official Title

This Operational Programme constitutes a set of proposals for the interventions envisaged under the terms of Cross-Border Cooperation of the Objective European Territorial Cooperation. It is submitted jointly by Romania and the Republic of Bulgaria, under the name “Romania – Bulgaria Cross-Border Cooperation Programme 2007-2013”, hereinafter “the Programme”.

1.3. Reference documents

The Programme has been developed in line with the EU rules on Community funds management during 2007–2013, as foreseen in the following regulations:

  • COUNCIL REGULATION (EC) No 1083/2006 laying down general provisions on the European Regional Development Fund, the European Social Fund and the Cohesion Fund and repealing Regulation (EC) No 1260/1999 (in the following referred to as “General Regulation”),
  • REGULATION(EC) No1080/2006 OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL on the European Regional Development Fund and repealing Regulation(EC) No1783/1999 (in the following referred to as “ERDF Regulation”)
  • COMMISSION REGULATION (EC) No 1828/2006 setting out rules for the implementation of Council Regulation (EC) N 1083/2006 laying down general provisions on the European Regional Development Fund, the European Social Fund and the Cohesion Fund and of Regulation (EC) N 1080/2006 of the European Parliament and of the Council on the European Regional Development Fund (in the following referred to as “Implementation Regulation”).

The Programme has been elaborated in coherence with principles and policies presented in the following documents:

  • Common Actions to Growth and Employment – The Lisbon Strategy;
  • Community Strategic Guidelines on Cohesion 2007-2013 (Council Decision No 2006/702/EC);
  • Community Integrated Guidelines for Growth and Jobs for 2007-2013.

Also, the Programme has been elaborated taking full account of the following national policies and joint Romania - Bulgaria documents:

National Strategic Reference Frameworks of Romania and Bulgaria;

Regional Operational Programmes of Romania and Bulgaria;

Sectoral Operational Programmes for Objective Convergence of Romania and Bulgaria;

National Programmes for Rural Developmentof Romania and Bulgaria;

National Programmes for Fisheries of Romania and Bulgaria;

Regional Development Plans of Bulgarian regions bordering Romania;

Regional Development Plans of Romanian regions bordering Bulgaria;

Phare CBC Joint Programming Document Bulgaria-Romania, 2003-2006.

1.4. Programme summary and description of programming process

1.4.1. General information

Since 1998, Romania and Bulgaria have already benefited from projects co-financed by the Phare Cross-Border Programme. Between 1999-2006 the EU has granted 8 million Euro per year (except 1999 with 5 million Euro) to each partner country for financing projects with cross-border impact, mainly in the fields of transport, environment and people-to-people actions. The EU funded Operational Programme for 2007-2013 will build upon the existing Phare CBC Programme framework, to add impetus to strengthening existing formal and informal links, and creating new ones, based on mutual respect, understanding and co-operation.

This European Territorial Cross-Border Cooperation Programme is the first to address the Romania-Bulgaria border area as an internal border of the EU, as a result of both countries’ accession to the EU in January 2007. It is the first programme developed under the principles and requirements of Structural Funds, as the cross-border area becomes eligible to receive regular financial support from the European Regional Development Fund under Objective European Territorial Cooperation. Also, it is the first Programme that treats the cross-border area as a single area, not split between the neighbouring countries. The proposed strategy of cooperation is intended as a coherent and effective response to itsidentified needs, obstacles and weaknesses and intends to be the vehicle for its cross-border socio-economic sustainable development.

The Programme will promote sustainable integrated cooperation across the cross-border area by concentrating on the strategic dimension of European territorial cross-border development which involves and benefits local communities. This will be achieved by drawing together the people from the eligible area in a range of economic, social and environmental activities.

The two partner countries declared their willingness to co-operate under this Programme in January 2006 with letters stating their bilateral agreement. Following, a Memorandum of Understanding setting out the modalities for implementing the programme will be signed before the approval of the Programme by the European Commission. The Memorandum of Understanding will state the rights and responsibilities of the member states (Romania and Bulgaria) and of all the bodies involved in the management of the Programme. Also, it will comprise a description of the financial arrangements (especially the responsibilities of all parties), as well as one of the control and audit systems.

The Programme synopsis is presented in Annex 1.

1.4.2. Description of the programming process

Programme preparation bodies

The present Programme is the first programme in which the border regions from both countries participated as partners throughout the whole programming cycle. The outcome is the result of several months’ discussions and consultations by the representatives of national ministries and relevant border institutions of the two countries participating in the European Territorial Cooperation policy. The process was coordinated by the Ministry of Development, Public Works and Housing in Romania as the proposed Managing Authority.

Preparation of the Operational Programme has been largely based on the main conclusions from the consultation process, described above, involving the following partner institutions from both countries:

  • Ministries with a direct interest in managing the Structural Funds assistance;
  • Other Government Institutions;
  • Regional Development Agencies and Regional Cross-Border Cooperation Office Calarasi;
  • Local public administrations;
  • Regional/local Environment and environmental protection organizations;
  • Border Social and Economic Partners;
  • NGOs;
  • Regional/local Universities and Education establishments.

The partner institutions were required to generate the planning, strategic thinking and ideas for operational projects, and were consulted at every phase of development to ensure their views were reflected in the Programme.

In compliance with EU regulatory requirements, these partners will form an essential part of the future networks necessary for the management and sound delivery of the Operational Programme. Some will be members of the Joint Monitoring Committee or the Joint Steering Committee.

To evaluate and coordinate the inputs, assist in the formulation of the Programme, and eventually manage the whole programming process, a Joint Task Force (JTF) was established in February 2006. This comprised representatives of the various ministries with responsibility for CBC programming in Romania and Bulgaria (Ministry of Development, Public Works and Housing and Ministry of Economy and Finance in Romania and Ministry of Regional Development and Public Works and Ministry of Finance in Bulgaria) and the Regional Leader of the border representatives[1]. The JTF coordinated the programming process by establishing the working procedures for preparing the programme. The JTF met on a regular basis to analyse the progress of drafting, to seek additional participation as necessary, and to solve or agree on the implementation issues arising.

The JTF was supported by a drafting team consisting of TA experts (contracted under a 2003 Phare CBC TA project) from Louis Berger consultancy, and one representative of the responsible ministry in each country. The drafting team had the specific task to prepare and elaborate the strategic section of the Operational Programme.

In March 2006 a Joint Working Group (JWG) for programming the Objective European Territorial Cooperation Romania - Bulgaria Operational Programme was established to involve all actors in the joint definition of the strategy and the priority axes, and in the development of structures and processes necessary for the implementation of the Programme. Membership of this working group included relevant bodies at national, regional and border levels. A wide partnership was developed, including both “institutional partners”, and also economic, social and other relevant border partners. The JWG worked in several sub-groups, covering specialised areas.

Programming process

Actual programming work was based on the results of several workshops, supported by joint consultative meetings between relevant national authorities, border stakeholders and programming experts.

Preparation of the draft strategy followed the comprehensive analysis of current regional and local conditions, using statistical data and information for the years 2004-2005. A SWOT analysis of the cross-border area was based on the needs and intentions identified through a series of interviews and seminars held in each eligible county/district, and questionnaires returned by local stakeholders indicating ideas for project proposals. These analyses are not presented in detail in this document, but have been used to illustrate specific development problems in the area, as a basis for the proposed programme strategy, priority axes and key areas of intervention.

Each completed version of the draft Programme was circulated to stakeholders, and a public consultation exercise was undertaken to promote and refine the document. There was extensive cross-border dialogue with stakeholders at national, regional and border level, via a combination of workshops and written consultations. Special emphasis was placed at local community level, where mutual respect and understanding had been developed.

These public consultations ensured a broad, active and effective involvement of all relevant bodies, but also guaranteed the dissemination of information to all partners, respecting the principles of transparency and access to information for all interested parties. Initial contacts formed during the programming process will further develop over the life of the Programme. The partnership principle will be promoted throughout the implementation, monitoring and evaluation of the Programme.

Consultation with Managing Authorities for Objective Convergence Operational Programmes, National Strategic Reference Frameworks, National Programme for Rural Development and National Programme for Fisheries of both Romania and Bulgaria have been undertaken. Meetings and written consultation were carried out in order to ensure the coherence and complementarity of the funding streams (European Regional Development Fund, European Social Fund, Cohesion Fund, European Agricultural Fund for Rural Development, European Fisheries Fund). Work has also been undertaken to ensure that there is no overlapping between the intended operations of Operational Programmes and that the division of operations is sensible, pragmatic and meet the economic development needs in both countries.

After the draft Programme had been prepared, a further consultation exercise was undertaken to refine and inform the stakeholders on the document before its approval by the Joint Task Force.